我国公共政策决策主体多元化与公民参与多样化的关系研究
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摘要
随着经济和政治文明的发展,我国传统的、单一的公共政策决策主体已不适应当今社会的发展,遂逐步呈现出多元化的趋势。从早期的“一方独霸”到今天的“三足鼎立”,甚至出现“诸侯纷争”的局面,公共政策的制定不再是某一个人或某几个人说了算,它常常需要在各种利益冲突之间达到某种均衡,以保证公共政策的顺利实施和社会的稳定发展。经济决定政治,政治是经济的集中体现,当然,前面所提到的利益冲突最主要的表现为经济利益上的冲突,正是由于这种利益上的冲突,所以使得各个决策主体谁都不肯善罢甘休,进而不断巩固在决策过程中的合法席位,谋取政治利益。
新中国成立以来,我国公民素质不断提高,公民参与管理公共事务的愿望日益迫切,且参与方式灵活多样,参与水平逐步提高。目前,我国正在努力建立服务型政府,实践证明,公民参与对于政府自身建设的推动作用是非常明显的。但由于双方缺乏沟通,公民想进一步表达自己的愿望,还是比较困难。同时,由于公民法律意思淡薄,公民申诉往往是个别现象,不具有代表性,所以,公民参与受诸多因素影响,怎样能够使公民真正参与到政策制定中来,实现其切身利益,是一个漫长且值得深究的问题。
现阶段再我国公民参与公共决中策存在很多问题,一方面,公民参与的无序性,得不到公共决策机构的重视；另一方面,由于无保障和渠道不足致使公民参与公共政策制定的愿望很难实现。以至于在我国经常出现公民参与的合理性与公民参与的无序性二者并存的局面,这种非制度化参与如果得不到正确引导,则很可能走向极端,甚至对公共政策的制定和执行起反作用。公民听证制度的出现,迅速提高了公’民的参与热情,提高了公民参政议政的意识,同时,这也使人大监督体制得到进一步完善。事物是普遍联系的,既相互作用又相互影响,公共政策决策主体多元化的发展势必影响公民参与的多样化态势,主体范围的扩大导致利益群体的增多,利益群体的增多又使得与之相关的公民有更多机会参与到公共决策中来,相反,公民参与的多样化会对政制定行予以更多的信息反馈,迫使政策制定者改变或调整政策,甚至于公民中的一部分人成为新的政策制定者。当务之急,应寻找一条新途径,在保证各方既得利益的同时,使政策制定和公民参与朝着健康,有序的方向发展。
With the development of economic and political civilization, our traditional single public policy--making system has no longer adapt to the development of society, and public policy--making gradually presents the trend of diversification. From the early single system to today's "three pillars" or even the diversification situations, public policy is no longer only decided by one person or several people. It is necessary to achieve a kind of balance among the various interest groups to assure the implementation of public policies and stability and development of the society. Economic dominates politics and politics is the concentrated expression of economic. In this paper, interest conflicts mainly refer to the conflicts of economic interests. It is the economic interest conflicts that make all the decision-maker be drawn into the internal strife, which consequently helps them to consolidate their legal seat and further require more political interests.
Since the founding of New China with self- cultivation improvement of citizens, their urgent desire to participate the public policy making is becoming stronger and stronger. The citizen participation is promoting our society development to a great extent and gradually raises the level of our participation. At present, China is making every effort to build service-oriented government. Practice shows that citizen participation is of great significance to accelerate the self-construction of government. However, Owe to the lack of communication between citizens and the government, it is still not easy for citizens to further express their wishes. Few citizens would join the process of public policy-making because of the lack of law awareness. A larger number of factors influence the participation degree of citizens. How to let citizens take-part in the real activities and achieve their interests should be further discussed.
Nowadays in the process of citizen participating in the public policy-making appeared many problems. On the one hand, citizen participation is not well-organized and can not cause the enough attention of government; on the other side, citizen participation in public policy-making is hard to be realized due to the insecurity and lack of channels. Therefore the reasonable participant and the disorder involvement co-existed in our country. If this non- institutionalization participation could not be properly guided it would go against the implementation of public policy.The emergence of civil hearing system immediately inspired the enthusiasm and awareness of citizens to participate the public policy-making as well as improved the monitoring system of NPC. Things are all connected. Diversification of public policy-making definitely will lead to the diversity of citizen participation. The diversity of citizen participation will bring more information and feedback, which will force the policy-makers to change or adjust the policy. In this process some citizens may become the new policy-makers. What is in urgent at present is to explore a new way to assure the citizen participation and public policy-making can move towards a healthy and orderly trend.
新中国成立以来,我国公民素质不断提高,公民参与管理公共事务的愿望日益迫切,且参与方式灵活多样,参与水平逐步提高。目前,我国正在努力建立服务型政府,实践证明,公民参与对于政府自身建设的推动作用是非常明显的。但由于双方缺乏沟通,公民想进一步表达自己的愿望,还是比较困难。同时,由于公民法律意思淡薄,公民申诉往往是个别现象,不具有代表性,所以,公民参与受诸多因素影响,怎样能够使公民真正参与到政策制定中来,实现其切身利益,是一个漫长且值得深究的问题。
现阶段再我国公民参与公共决中策存在很多问题,一方面,公民参与的无序性,得不到公共决策机构的重视；另一方面,由于无保障和渠道不足致使公民参与公共政策制定的愿望很难实现。以至于在我国经常出现公民参与的合理性与公民参与的无序性二者并存的局面,这种非制度化参与如果得不到正确引导,则很可能走向极端,甚至对公共政策的制定和执行起反作用。公民听证制度的出现,迅速提高了公’民的参与热情,提高了公民参政议政的意识,同时,这也使人大监督体制得到进一步完善。事物是普遍联系的,既相互作用又相互影响,公共政策决策主体多元化的发展势必影响公民参与的多样化态势,主体范围的扩大导致利益群体的增多,利益群体的增多又使得与之相关的公民有更多机会参与到公共决策中来,相反,公民参与的多样化会对政制定行予以更多的信息反馈,迫使政策制定者改变或调整政策,甚至于公民中的一部分人成为新的政策制定者。当务之急,应寻找一条新途径,在保证各方既得利益的同时,使政策制定和公民参与朝着健康,有序的方向发展。
With the development of economic and political civilization, our traditional single public policy--making system has no longer adapt to the development of society, and public policy--making gradually presents the trend of diversification. From the early single system to today's "three pillars" or even the diversification situations, public policy is no longer only decided by one person or several people. It is necessary to achieve a kind of balance among the various interest groups to assure the implementation of public policies and stability and development of the society. Economic dominates politics and politics is the concentrated expression of economic. In this paper, interest conflicts mainly refer to the conflicts of economic interests. It is the economic interest conflicts that make all the decision-maker be drawn into the internal strife, which consequently helps them to consolidate their legal seat and further require more political interests.
Since the founding of New China with self- cultivation improvement of citizens, their urgent desire to participate the public policy making is becoming stronger and stronger. The citizen participation is promoting our society development to a great extent and gradually raises the level of our participation. At present, China is making every effort to build service-oriented government. Practice shows that citizen participation is of great significance to accelerate the self-construction of government. However, Owe to the lack of communication between citizens and the government, it is still not easy for citizens to further express their wishes. Few citizens would join the process of public policy-making because of the lack of law awareness. A larger number of factors influence the participation degree of citizens. How to let citizens take-part in the real activities and achieve their interests should be further discussed.
Nowadays in the process of citizen participating in the public policy-making appeared many problems. On the one hand, citizen participation is not well-organized and can not cause the enough attention of government; on the other side, citizen participation in public policy-making is hard to be realized due to the insecurity and lack of channels. Therefore the reasonable participant and the disorder involvement co-existed in our country. If this non- institutionalization participation could not be properly guided it would go against the implementation of public policy.The emergence of civil hearing system immediately inspired the enthusiasm and awareness of citizens to participate the public policy-making as well as improved the monitoring system of NPC. Things are all connected. Diversification of public policy-making definitely will lead to the diversity of citizen participation. The diversity of citizen participation will bring more information and feedback, which will force the policy-makers to change or adjust the policy. In this process some citizens may become the new policy-makers. What is in urgent at present is to explore a new way to assure the citizen participation and public policy-making can move towards a healthy and orderly trend.
引文
①福泽谕吉著,陈玮芬译,《文明论概略》,清华大学出版社,2010.4
[1]埃莉诺·奥斯特罗姆.公共事物的治理之道[M].上海,上海三联出书店,2000.
[2]蔡定剑.公众参与：风险社会的制度建设.法律出版社,2009.8.1
[3]蔡定剑.公众参与：欧洲的制度和经验.法律出版社,2009.8.1.
[4]褚松燕.权利发展与公民参与--我国公民资格权利发展与有序参与研究.中国法制出版社,2007.4.
[5](德)海贝勒.舒耕德著.张文红译.从群众到公民——中国的政治参与.中央编译出版社,2009.6.1.
[6]傅如良.综论我国学界关于公平与效率问题的研究,湖南师范大学社会科学学报,2005.1.34.
[7]格罗弗·斯塔林.公共部门管理.上海,上海译文出版社,2003.145.
[8]郭道晖.社会权力与公民社会.译林出版社,2009.12.1.
[9]顾建光.现代公共管理学.上海人民出版社,2007.4.
[10]黄健荣.公共管理新论.北京.社会科学出版社,2005：336
[11]贾西津.中国公民参与案例与模式.社会科学文献出版社,2008.10.1.
[12]李亚李富成.价格听证指南.中国经济出版社,2010.1.
[13]李强.我国各阶层收入差距分析.党建通讯,1997.3.
[14]林尚立.社区民主与治理：案例研究,北京,社会科学文献出版社,2003.
[15]刘国光.中国宏观经济问题.北京,经济管理出版社,2004.179-180.
[16][美]托马斯·戴伊.理解公共政策.北京,华夏出版社,2004.
[17][美]乔治·弗雷德里克森.公共行政的精神.北京,中国人民大学出版社,2003.99.
[18]欧文·E·休斯.公共管理导论.北京,人民大学出版社,2002.
[19]周雁翎.差异悬殊：中国卫生保障事业面临严峻挑战.中国改革,2002.4.
[20]潘家军.戴艳军.以人为本：新时期我国公共政策的核心价值取向.求实,2004.8.
[21]邱亿通.现代化的历史趋势与价值选择.北京,中国社会科学出版社,2004.
[22]石路.政府公共决策与公民参与.社会科学文献出版社,2009.
[23]王维国.公民有序政治参与的途径.人民出版社,2007.6.
[24]王巍.牛美丽编译.公民参与--当代西方公共行政学思想经典译丛.中国人民大学出版社,2009.10.1.
[25]王虹.社会转型期的公共政策价值取向分析.中共杭州市委党校学报,2005.3
[26]吴双.建设公共服务型政府问题综述.信息与研究,2005年第3期,P25.
[27]谢庆奎.当代中国政府与政治.北京,高等教育出版社,2003.
[28]俞可平.全球化时代的“社会主义”.北京,中央编译出版社,1998.107.
[29]俞可平等译.《治理与善治》.北京,社会科学文献出版社,2000.
[30]俞可平.西方政治学名著提要.南昌,江西人民出版社,2001.
[31]阎盂伟.“社会公正”与社会和谐.天津社会科学,2007.1.
[32]珍妮特·V·登哈特.罗伯特·B·登哈特.新公共服务：服务而不是掌舵.北京,中国人民大学出版社,2004.
[33]赵平之.论底线公平基础上的效率优先.中共宁波市委党校学报,2005.6.12.
[34]张骏生.公共政策的有效执行.清华大学出版社,2006.
[35]张贤明.政府责任与法律责任的比较分析.政治学研究,2000.1.
[36]张义之.公共政策制定中的公共利益偏离问题分析——基于政策输入的视角.陕西,西北大学.2007.
[37]曾昭宁.公平与效率：中国走向现代化的抉择.东营.石油大学出版社.1994.
[38]曾莉.论我国公共政策的公平价值取向.东南大学.2004年.
[39]朱余斌.公平倾向：透析我国新一轮公共政策周期的主要价值取向,新疆社科论坛,2007.2.
[40]Reichard, Christoph:Education and Training for New Public Management,1997.
[41]SheldonSilver&MartyLuster.ReinventingGovernmentSeries:PerformanceMeasurem-ent and Budgeting,1995,19-25.
Mr. Bryan Andrews.Recruitment and Selection in the Irish Civil Service,March,2006.
[1]埃莉诺·奥斯特罗姆.公共事物的治理之道[M].上海,上海三联出书店,2000.
[2]蔡定剑.公众参与：风险社会的制度建设.法律出版社,2009.8.1
[3]蔡定剑.公众参与：欧洲的制度和经验.法律出版社,2009.8.1.
[4]褚松燕.权利发展与公民参与--我国公民资格权利发展与有序参与研究.中国法制出版社,2007.4.
[5](德)海贝勒.舒耕德著.张文红译.从群众到公民——中国的政治参与.中央编译出版社,2009.6.1.
[6]傅如良.综论我国学界关于公平与效率问题的研究,湖南师范大学社会科学学报,2005.1.34.
[7]格罗弗·斯塔林.公共部门管理.上海,上海译文出版社,2003.145.
[8]郭道晖.社会权力与公民社会.译林出版社,2009.12.1.
[9]顾建光.现代公共管理学.上海人民出版社,2007.4.
[10]黄健荣.公共管理新论.北京.社会科学出版社,2005：336
[11]贾西津.中国公民参与案例与模式.社会科学文献出版社,2008.10.1.
[12]李亚李富成.价格听证指南.中国经济出版社,2010.1.
[13]李强.我国各阶层收入差距分析.党建通讯,1997.3.
[14]林尚立.社区民主与治理：案例研究,北京,社会科学文献出版社,2003.
[15]刘国光.中国宏观经济问题.北京,经济管理出版社,2004.179-180.
[16][美]托马斯·戴伊.理解公共政策.北京,华夏出版社,2004.
[17][美]乔治·弗雷德里克森.公共行政的精神.北京,中国人民大学出版社,2003.99.
[18]欧文·E·休斯.公共管理导论.北京,人民大学出版社,2002.
[19]周雁翎.差异悬殊：中国卫生保障事业面临严峻挑战.中国改革,2002.4.
[20]潘家军.戴艳军.以人为本：新时期我国公共政策的核心价值取向.求实,2004.8.
[21]邱亿通.现代化的历史趋势与价值选择.北京,中国社会科学出版社,2004.
[22]石路.政府公共决策与公民参与.社会科学文献出版社,2009.
[23]王维国.公民有序政治参与的途径.人民出版社,2007.6.
[24]王巍.牛美丽编译.公民参与--当代西方公共行政学思想经典译丛.中国人民大学出版社,2009.10.1.
[25]王虹.社会转型期的公共政策价值取向分析.中共杭州市委党校学报,2005.3
[26]吴双.建设公共服务型政府问题综述.信息与研究,2005年第3期,P25.
[27]谢庆奎.当代中国政府与政治.北京,高等教育出版社,2003.
[28]俞可平.全球化时代的“社会主义”.北京,中央编译出版社,1998.107.
[29]俞可平等译.《治理与善治》.北京,社会科学文献出版社,2000.
[30]俞可平.西方政治学名著提要.南昌,江西人民出版社,2001.
[31]阎盂伟.“社会公正”与社会和谐.天津社会科学,2007.1.
[32]珍妮特·V·登哈特.罗伯特·B·登哈特.新公共服务：服务而不是掌舵.北京,中国人民大学出版社,2004.
[33]赵平之.论底线公平基础上的效率优先.中共宁波市委党校学报,2005.6.12.
[34]张骏生.公共政策的有效执行.清华大学出版社,2006.
[35]张贤明.政府责任与法律责任的比较分析.政治学研究,2000.1.
[36]张义之.公共政策制定中的公共利益偏离问题分析——基于政策输入的视角.陕西,西北大学.2007.
[37]曾昭宁.公平与效率：中国走向现代化的抉择.东营.石油大学出版社.1994.
[38]曾莉.论我国公共政策的公平价值取向.东南大学.2004年.
[39]朱余斌.公平倾向：透析我国新一轮公共政策周期的主要价值取向,新疆社科论坛,2007.2.
[40]Reichard, Christoph:Education and Training for New Public Management,1997.
[41]SheldonSilver&MartyLuster.ReinventingGovernmentSeries:PerformanceMeasurem-ent and Budgeting,1995,19-25.
Mr. Bryan Andrews.Recruitment and Selection in the Irish Civil Service,March,2006.